
PRIVATE ENDOWMENT AND 
PUBLIC EDUCATION 



A REPORT ON THE USE OF THE 
HANDLEY FUND 



WINCHESTER, VA. 



THIRD EDITION 



GENERAL EDUCATION BOARD 

61 Broadway New York City 
1919 



Lft 381 
.W7 G4 
1919b 
Copy 1 



PRIVATE ENDOWMENT AND PUBLIC 
EDUCATION 



THE PUBLICATIONS OF THE 
GENERAL EDUCATION BOARD 

REPORTS: 

THE GENERAL EDUCATION BOARD: AN ACCOUNT OF ITS ACTIVE 

ITIES, I902-I914. CLOTH, 240 PAGES, WITH 33 FULL-PAGE 

ILLUSTRATIONS AND 3 I MAPS. 
REPORT OF THE SECRETARY OF THE GENERAL EDUCATION BOARD, 

I9I4-I915. CLOTH AND PAPER, 82 PAGES, WITH 8 MAPS. 
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I915-I916. CLOTH AND PAPER 86 PAGES, WITH ID MAPS. 
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ANNUAL REPORT OF THE GENERAL EDUCATION BOARD, 1917-1918. 

STUDIES: 

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FRANK P. BACHMAN. 2ND EDITION. I76 PAGES, AND APPEN- 
DIX WITH 25 FULL-PAGE ILLUSTRATIONS AND 34 CUTS. 
THE JUNIOR HIGH SCHOOL, BY THOMAS H. BRIGGS.* 
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GATES. PAPER, I5 PAGES. 

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BY CHARLES W. ELIOT. PAPER, 29 PAGES. 

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PAGES. 

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UNIVERSITIES AND COLLEGES, BY EDWIN A. ALDERMAN. 
PAPER, 29 PAGES, WITH APPENDIX. 
J. LATIN AND THE A. B. DEGREE, BY CHARLES W. ELIOT. 
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6. THE WORTH OF ANCIENT LITERATURE TO THE MODERN 

WORLD, BY VISCOUNT BRYCE. PAPER, 20 PAGES. 

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• In Preparation. 

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The publlcalions of the Board may be obtained on request 



PRIVATE ENDOWMENT AND 
PUBLIC EDUCATION 

A REPORT ON THE USE OF THE 
HANDLEY FUND 



WITH AN INTRODUCTION BY 

R. GRAY WILLIAMS 

President of the Handley Board oj Trustees 



THIRD EDITION 



GENERAL EDUCATION BOARD 

61 Broadway New York City 
1919 






COPYRIGHT, iqi8, & IQIQ 
BY 

General Education Board 



Gift 

^^V i f9l9 



<> 


THE HANDLEY TRUSTEES 


^ 


(1896- 


-1919) 


^ 

^ 


* Albert Baker 


G. W. Kurtz 


t A. M. Baker 


*W. S. Love, M. D. 


^"^ 


Shirley Carter 


M. M. Lynch, 


^ 


♦Holmes Conrad, 


Vice President 


^ 


President 


W. P. McGuiRE, M. D. 




T. J. Cooper 


John W. Rice, 




H. D. Fuller 


Secretary 




* C. M. GiBBENS 


John I. Sloat 




* S. H. Hansbrough 


R. Gray Williams, 




t T. W. Harrison 


President 




• Deceased. 






f Resigned. 





CONTENTS 

PAGE 

Introduction by R. Gray Williams .... vii 

I. Winchester: Its People and Industries 3 

II. The Schools of Winchester .... 20 

III. Needs of the Winchester Schools . . 36 

IV. Use of the Handle y Fund 52 

V. Appendix 63 



INTRODUCTION 

BY 

R. Gray Williams 
President of the Handley Board of Trustees 

THIS little volume embodies a study of the educa- 
tional situation and possibilities of the town of 
Winchester, Virginia. It is believed that the 
study is of more than local interest, since it raises in a 
practical way the question of establishing cooperation 
between public authorities and private endowment in 
the promotion of public education. If the proposed 
experiment can be successfully carried out at Winchester, 
a new and important field will be opened to private 
benefaction in this country. 

The Handley Fund, amounting to nearly two million 
dollars, was bequeathed to the town of Winchester by a 
sturdy Irishman who at his death was a citizen of Penn- 
sylvania, and who had in the course of his hfe spent barely 
a week in the city which he so splendidly assisted. John 
Handley was born in Ireland in 1835 and came to America 
in his nineteenth year. The son of a carpenter, he him- 
self followed this trade in Washington, D. C, during the 
fifties and until his removal to Scranton, Pa., in 1861. 

During the latter part of his residence at Washington 



vui INTRODUCTION 

he had contrived to study law, upon the practice of which 
he entered soon after going to Scranton. In personal 
aspect and appearance Judge Handley presented a strik- 
ing figure, as one gathers from a description of him at 
this time by Hon, Henry W. Palmer, sometime member 
of the United States Congress from Wilkes-Barre, Pa., 
and the friend, attorney, and, later, one of the executors 
of Judge Handley: 

"In the year of 1861, a man appeared in Scranton 
whose history was a romance. He was about six feet, 
four inches tall, and very stately. He always dressed in 
a black frock coat, wore a high collar, and had his hair 
long. He was looked upon as a rebel spy, and at one 
time was in danger of being lynched, but he had courage 
and declared that he was no spy, but a loyal man. He 
soon became counsel for the Draft Commissioners, The 
firm of Harding and Palmer tried most of Handley's law 
suits for several years until he was elected judge in the 
year 1875. He served ten years and was President Judge 
of Lackawanna, after the county was divided. He ac- 
cumulated a large fortune and died February 15, 1895." 

The fortune, of which Mr. Palmer speaks, was largely 
the result of sagacious investment in anthracite coal 
lands and in real estate in the very heart of the city of 
Scranton. 

One is naturally curious as to the reason which led 
Judge Handley to dedicate his fortune to the city of Win- 
chester. To some extent his generosity may be explained 
by his intense admiration for Stonewall Jackson and 
Robert E. Lee, life size portraits of whom hung over the 



INTRODUCTION ix 

entrance to his dwelling apartment; Winchester was 
closely associated with Jackson, for there he lived during 
the first winter of the war, and in the Shenandoah Valley, 
where Winchester lies, Jackson first established his great- 
ness as a military commander. 

But Judge Handley had also somewhat closer personal 
connections with Winchester, first, through his friend, 
Mr. James Jifkins, an Englishman, who, at one time a 
resident of Pennsylvania, subsequently removed to 
Frederick County, Virginia, where he purchased a farm 
close to Winchester. Through Mr. Jifkins Judge Hand- 
ley came to know the late Major Holmes Conrad, Solici- 
tor-General of the United States under President Cleve- 
land and chief prosecutor in the postal fraud cases 
under President Roosevelt. Judge Handley was capti- 
vated by Major Conrad's personal attractiveness, wide 
reading, and rare conversational powers. Subsequently, 
through his friends, Mr. Jifkins and Major Conrad, 
Judge Handley became the friend of Major Robert 
W. Hunter, a man of unusual charm. Nevertheless 
his visits to Winchester were brief and infrequent. His 
practical interest in the community first took the form 
of an endeavor to develop the town by means of an im- 
provement company, which, however, failed to prosper. 
The collapse of the improvement company did not, how- 
ever, alienate Judge Handley's interest or affection. On 
his death in Scranton, February 15, 1895, his body was 
brought to Winchester for burial. The last item of his 
will contained the following words : 



X INTRODUCTION 

"All the rest and residue of my estate I give, devise 
and bequeath to the City of Winchester, to be accumu- 
lated by said city for the period of twenty years. The 
income arising from said residue estate to be expended 
and laid out in said city by the erection of school houses 
for the education of the poor." 

The courts so interpreted the bequest as to permit the 
Handley Board of Trustees to apply the fund to the 
maintenance as well as the building of schools.* 

Judge Handley's will further prescribed that his estate 
should accumulate under the management of his execu- 
tors for a period of twenty years before it was turned over 
to the city of Winchester. When this period had elapsed, 
the Handley Library was built, and some idea of its 
importance to the community can be derived from the 
fact that more than 50,000 persons passed through its 
doors during the year 1918. In connection with the 
library a public free lecture course is maintained. Every 
year prominent professional speakers appear. The lec- 
ture course is designed to supplement the library in stimu- 
lating the use of books and in broadening the intelligent 
interests of the community. 

. *"The clause in the residuary bequest, 'to be expended and laid out in 
said city by the erection of school houses for the education of the poor' 
is hereby ascertained, construed and held to mean, and shall be so ap- 
plied, as though it did in express terms provide that the fund be expended 
and laid out in the purchase of the necessary land, the erection and equip- 
ment of school houses and in the maintenance and conduct of the school 
so provided for." (See Records of the Circuit Court of Frederick County 
Virginia, Board of Handley Trustees vs. Winchester Memorial Hospital 
etal.) 



INTRODUCTION xi 

More difficult was the solution of the problems con- 
nected with the educational side of Judge Handley's be- 
quest. By act of the Virginia Legislature a Board of nine 
citizens of Winchester was created, to be elected by the 
Common Council of the town, and the Council was also 
to retain the power of approving the plan ultimately 
suggested for the organization of schools under Judge 
Handley's will. As the first step in dealing with its 
responsibility in this field, the Handley Board invited the 
General Education Board of New York to make an 
educational and occupational study of Winchester and 
to suggest a plan of educational development. 

It gives me pleasure as President of the Board to say 
that this work was so sympathetically and competently 
done that the general plan suggested by the officers of the 
General Education Board received the unanimous en- 
dorsement of the Handley Board, the School Board, and 
the Common Council. The gratitude of these bodies 
and of the citizens of Winchester is due to the General 
Education Board, its officers and staff, for the service 
which they have rendered in working out the plan of co- 
operation between private endowment as represented 
by the Handley Fund and public education as represented 
by the School Board of the city. I venture to conclude 
this brief statement with an excerpt from my annual 
report expressing the vision and the hope of the Handley 
Board : 

"It is a happy future that awaits the children of this 
community. In the great institution that will here be a 



xii INTRODUCTION 

monument to the wise generosity of Judge Handley the 
bodies of children will be made clean and strong, the 
hands of children will be made quick and skilled and the 
minds of children will be made full and vigorous. 

"The great imposing buildings will be significant of 
the spirit of enlightenment that will dwell in these schools 
and radiate its broadening and liberating influence into 
every corner of the community. 

"Not alone the children, but all of us will learn to come 
in contact with these schools as the central, civic d>Tiamo 
of community action. Public lectures in the school 
auditorium will keep us in touch with the best that is 
being thought and done in the world. The practical 
instruction in sanitation, in cooking, in making the home 
attractive, in the rules and practices of right and health- 
ful living will bear rich fruit in a wider material comfort 
and intelligent living throughout our community. 

"And the teachers in these schools, under the leader- 
ship of a trained and progressive superintendent, will in 
themselves form a body of educated men and women 
valuable to the civic broadening and betterment of Win- 
chester. Selected alone for their trained fitness to do 
well the work assigned them these teachers should stimu- 
late the tone and temper of this entire section. 

" It is obvious that Winchester will be a good place in 
which to live and to educate children. The report of 
the General Education Board on the development of 
Winchester schools will have a wide circulation. The 
singular size and scope of the schools here will arrest 



INTRODUCTION xiii 

attention by the very fact of their location in a town so 
small. 

"When this dream comes true our gratitude to Judge 
Handley must be emphasized. The carpenter who 
worked at his trade in the day and studied at night will 
have become, through the wise use of his money, the 
builder of better men and women in this town. In front 
of the great building that will rise on the Equity we should 
place a statue in heroic size of Judge Handley and every 
child who goes to these schools should be taught gratitude 
to our great benefactor. 

"The greatest service that can be rendered a democ- 
racy is to train its citizens to understand its duties and 
use aright its opportunities. This service Judge Handley 
has rendered here in conspicuous fashion. His money 
must remain a sacred trust for the good of children born 
and unborn and must be kept free from the pollution of 
political or personal selfishness." 



PRIVATE ENDOWMENT AND PUBLIC 
EDUCATION 



PRIVATE ENDOWMENT AND 
PUBLIC EDUCATION 

I. WINCHESTER: ITS PEOPLE AND 
INDUSTRIES 

WINCHESTER is located at the northern apex 
of Virginia, in the heart of the Shenandoah 
Valley. At this point the valley is about 
thirty miles wide and stretches northward into West 
Virginia and southward beyond Lexington, Virginia. The 
region is distinguished for natural beauty, for the fertility 
of the soil, and for its equable climate. As might be 
expected, it is given over to general agriculture, with 
apple growing and the industries incidental to apple 
growing of increasing importance. 

There is little in the immed'ate locality of Winchester 
to suggest any marked development of productive in- 
dustries and factories. There are no known mineral 
deposits, or natural advantages such as water power. 
The textile industry has indeed taken root, but this 
is due rather to the enterprise of individuals than to nat- 
ural advantages. Nor are conditions altogether favor- 
able to the easy development of outside trade connec- 
tions. The Great North Mountains block the direct 



4 THE HANDLEY FUND 

way to the west, although a railroad has lately been pro- 
jected through them to tap the lumber and mineral re- 
sources of West Virginia. The Blue Ridge Mountains 
bar the way to the east. Winchester is thus without 
direct east and west railway connections. Its railroads 
are branch lines. Within the valley itself, Winchester 
commands only the trade of the neighboring counties, as 
it comes into competition with Martinsburg, West Vir- 
ginia, twenty-two miles to the north, and with Harrison- 
burg, Virginia, sixty miles to the south. 

Winchester is thus located in a region of unusual agri- 
cultural promise. While in recent years textile mills 
have been prosperously established, the possibilities at 
Winchester naturally connect themselves with agricul- 
ture, and more especially with the orcharding of apples, 
and with such occupations and activities as spring natur- 
ally from apple orcharding. The Winchester apple dis- 
trict is one of the most important in the United States. 
The town ships more apples than any other single point 
in the state, and, it is claimed, has larger special facilities 
for the cold storage of apples than any other place in the 
country. Vinegar plants and barrel factories have al- 
ready sprung up and will doubtless grow rapidly in the 
near future. The population of Winchester is thus 
largely engaged in occupations directly or indirectly 
connected with agriculture and in such businesses, 
trades, and professions as are required to sustain the life 
of a rural community and rural town. 

The total population, according to a complete census 




o 



t^ 



PEOPLE AND INDUSTRIES 5 

taken by us in November, 191 7, is 6,469 — an increase of 
605 over the federal census of 19 10. Of the present 
population, 5,561, or 86 per cent., are white, and 908, or 
14 per cent., are colored.^ 

The white population is singularly American in char- 
acter and unusual in its racial homogeneity. For ex- 
ample, 2,265, or 41 per cent., were born in Winchester; 
1,370, or 25 per cent., in Frederick County; 884, or 16 
per cent., in other parts of Virginia; 970, or 17 per cent., 
elsewhere in the United States; only 72, or i per cent., 
are foreign born. With 99 per cent, of its white population 
American and 82 per cent, of it Virginian, Winchester 
enjoys an unusual degree of social solidarity, its people 
having similar standards of living and conduct. 

The negro population is equally homogeneous, for 405, 
or 45 per cent., were born in Winchester; 112, or 12 
per cent., in Frederick County; 266, or 29 per cent., in 
other parts of Virginia; 124, or 14 per cent., elsewhere 
in the United States; only i was born outside of the 
United States. 

Winchester, like most rural cities, grows slowly. It 
will continue to grow slowly, unless there is an unex- 
pected development of such industries as attract labor, 
and this is probable only to a limited extent. Such 
growth as there has been in recent years has been con- 
fined entirely to the white portion of the population. 
For instance, the whites have increased from 3,773 in 
1890 to 5,561 in 191 7. On the other hand, the negro 

^See Appendix, Table I, page 65, 



6 THE HANDLEY FUND 

population is stcadil}' decreasing, having dropped from 
1,423 in 1890 to 90S in 1917.^ 

The distribution of tlie population of Winchester has 
an important bearing upon questions that will be dis- 
cussed in the course of this report. Winchester occupies 
a territory rectangular in form, about two miles long 
and about one mile wide. Loudoun Street, running 
north and south, and Water Street, running east and 
west, divide this rectangle into four parts, formerly 
known as Wards I, II, III, and IV.^ (Fig. i.) 







Fig 


. I 








Wards of \ 


Vinchester 




r^ 


Ward II 






Ward IV 




Ward I 






Ward m 



N 



The white population is scattered rather evenly among 
these wards, although the largest number of whites 
(1,733) live in Ward III, and the smallest number 
(1,108) in Ward IV.^ The colored population is not so 

'See Appendix, Table II, page 66. 

*The town is now legally divided into two wards, separated by Water 
Street. We follow the former division for purposes of coiivcnIc;u\,'. 
'See AppendLx, Table III, page 66. 



PEOPLE AND INDUSTRIES 7 

evenly distributed. Wards I and II have 233 and 256 
negroes, respectively, and Ward IV only 18, whereas 
Ward III is dearly the colored center, having 401 ne- 
groes, which is nearly a fifth of the total nopulation of 
the ward, and 44 per cent, of the entire colored popula- 
tion of the city. 

As might be expected, the relation between Win- 
chester and the surrounding country is close. Parents 
who live a mile or two out of town have for years sent 
their children to the Winchester schools and in all prob- 
ability will continue to do so. Therefore, in planning for 
the future, the population of the immediately surround- 
ing country should be taken into account. Accordingly, 
a census was taken for a mile out along the roads leading 
into the city. These outlying districts have a total pop- 
ulation of 703 — 661 whites and 42 negroes.^ Of those 
of school age, that is, children between six and eighteen 
years of age, there are 149 white children between six and 
fourteen and 43 between fifteen and eighteen. Among 
the colored children of corresponding ages, there are 
7 and 5 respectively. 

To ascertain the occupations in which the people of 
Winchester are engaged, a complete occupational census 
was made in November, 1917.^ 

Winchester can scarcely be said to have a leisure class, 

^See Appendix, Table IV, page 67. 

*See Appendix, Table V, between pages 68 and 69. The data in this 
table follow the general classifications given in the Index to Occupations 
of the United States Bureau of the Census. 



8 THE HANDLEY FUND 

at any rate, among the men. There are to be sure, 86 
white men and 1 1 colored who report no occupation and 
who are listed as "at home." These include, however, 
mostly the very old, the unfortunate, and the sick. In 
fact, 90 per cent, of the white men, or 1,481 out of a total 
of 1,636, are at work, and this is exclusive of 12 at school 
and 57 in the army. Similarly, out of a total male col- 
ored population of 260, 245, or 94 per cent., are in bread- 
winning occupations; there are, besides, 4 in the army.^ 

There may be a small leisure class among the white 
women, as only 19 per cent., or 387 out of a total of 
2,064, are engaged outside the home. On the other 
hand, 43 per cent, of the colored women are wage earn- 
ers.- It does not follow, however, that women are at 
leisure simply because they are reported as at home 
rather than in business. The great majority of the 
women — both white and colored — whether listed as at 
home or at work, are doubtless homemakers, with home- 
making as much their occupation as if they were engaged 
in industry, trade, or service. 

The 2,260 active workers of Winchester engage in a 
great variety of pursuits. This is not surprising. The 
number of different occupations and professions re- 
ported in a census does not depend altogether on the size 
of the city. A certain variety is necessary to sustain 
any city irrespective of its size. For example, a town, 
whether of ten thousand or fifty thousand, requires 

'See Appendix, Table V, between pages 68 and 69. 
*See Appenduc, Table V, between pages 68 and 69. 




f4 






PEOPLE AND INDUSTRIES 9 

ministers, doctors, lawyers, tradespeople who deal in food 
and clothing, skilled workers such as blacksmiths, tailors, 
milliners, carpenters, painters, and a certain amount of 
unskilled labor. Hence, the first difference between 
cities is not in the number of occupations represented, 
but in the number of persons engaged in each of these 
and in the number and extent of specialized industries, 
such as woolen mills, knitting mills, by-product plants, etc. 

The men of Winchester are engaged chiefly in agricul- 
ture, trade, and manufacture. In respect to the number 
of persons engaged, agriculture outranks any single 
manufacturing or trade occupation. One hundred and 
four of the men of Winchester are so occupied. The 
predominance of agriculture is still more marked if 
the industries necessarily connected with it (e. g., the 
making of barrels) or springing out of it (e. g., the 
making of vinegar) are taken into account.^ Especially 
important from the educational point of view is the fact 
that agriculture is a scientific occupation, the principles 
of which, with their application, can be taught. 

Manufacturing includes : 

1. Skilled workers in the several hand trades, for ex- 
ample, blacksmiths, masons, carpenters, painters, plumb- 
ers, tailors, tinsmiths, and a few factory specialists, such 
as dyers. 

2. Semi-skilled workers in the textile industries as 
well as in other industries, for example, sewing machine 
operators, mill feeders, and glove finishers ; and 

'See Appendix, Tabley, between pages 68 and 69. 



lo THE HANDLEY FUND 

3. General or common laborers. 

The skilled workers are scattered among as many as 
twenty different hand trades, so that, while they total 
332,^ the number in any one is in all except a few instances 
very small. Cabinetmakers and carpenters are the most 
numerous, 73 in all, while there are as few as 3 in a trade 
like stonecutting.^ 

From the educational point of view, two things are 
peculiar to the hand trades. In the first place, they in- 
volve a minimum of general knowledge and general train- 
ing, and a maximum of experience and skill acquired 
thereby. In the second place, each separate hand trade 
calls for its own particular kind of experience and peculiar 
kind of skill, mostly acquired through practice. A pro- 
ficient mason cannot as such turn his hand to house 
painting, nor is practice in house painting a preparation 
for masonry. 

It is also well to note in this connection that only ;^6 out 
of the 332 skilled workers are under twenty-five years of 
age.^ The opening at Winchester for young men in the 
skilled trades is therefore very limited. Probably not 
more than 7 or 8 in any one age group between nineteen 
and twenty-four find employment in them. Nor is 
there any reason to believe that the number who can 
profitably pursue such employment in Winchester will 
greatly increase. 

^See Appendix, Table V, between pages 68 and 69. 
*See Appendix, Table V, between pages 68 and 69. 
•See Appendix, Table V, between pages 68 and 69. 



.PEOPLE AND INDUSTRIES ii 

The two" textile and the other industries employ i68 
semi-skilled workers.^ These semi-skilled workers are 
variously engaged. For instance, in the textile indus- 
tries there are washers, carders, drawers, nappers, spin- 
ners, and weavers. In the other industries, there are 
knitters, glove finishers, sewing machine operators, 
evaporators, and so on. With these semi-skilled indus- 
trial workers may well be grouped most, if not all, of the 
128 whites employed in transportation,^ for transporta- 
tion includes railroad employes, expressmen, chauffeurs, 
draymen, liverymen, etc. Semi-skilled work is thus a 
broad term, covering many kinds of employment. Yet 
in few or no instances does such work require prolonged 
apprenticeship, or special educational preparation. 

On the face of the figures^ it appears that there are 
only 252 general or common laborers. The actual num- 
ber is considerably higher. Certainly the 29 negroes in 
transportation might be included, for they perform the 
roughest kind of service — handle freight, express, and 
luggage, clean streets, and repair roads. Nor can the 36 
men who failed to specify any particular occupation be 
high up in the scale of labor. Finally, the 61 whites and 
63 negroes in domestic and personal service are mostly 
caretakers, janitors, cleaners, waiters, and porters. If 
these several groups are combined the number of com- 
mon laborers becomes considerable — a total of 441, a 

'See Appendix, Table V, between pages 68 and 69. 
*See Appendix, Table V, between pages 68 and 69. 
'See Appendix, Table V, between pages 68 and 69. 



12 THE HANDLEY FUND 

larger number than is found in any other single field. Of 
these, 202 are colored, which is 82 per cent, of all negro 
workers.^ In fact, common labor is practically the only 
kind of labor open at Winchester to negroes, the skilled 
and semi-skilled trades being almost exclusively in the 
hands of whites. 

After manufacturing, trade is next in importance. 
Trade includes banking, wholesale establishments, and 
every possible kind of retail store — drygoods stores, gro- 
cery stores, shoe stores, notion stores, meat shops, fruit 
stands, etc. Moreover, the term covers not only proprie- 
tors and managers, but salespeople, drivers, and delivery- 
men as well, including, in fact, everyone directly engaged, 
except bookkeepers, clerical workers, and stenographers. 

The tradespeople alone number 357." Yet the variety 
of wholesale establishments, stores and shops is so great 
that, as with the skilled hand trades, the number in any 
single line is exceedingly small. An important distinc- 
tion must, however, be made. While no single skill or 
group of skills is common to the hand trades, there is a 
considerable body of knowledge and technique common 
to all kinds of business. A part, at least, of this com- 
mon knowledge and common technique can be made a 
matter of school training. What is true of business in 
general is even more true of such aids to business as 
bookkeeping, stenography, and typewriting, in which 68 
men are employed. 

'See Appendix, Table V, between pages 68 and 69. 
*See Appendix, Table V, between pages 68 and 69. 



PEOPLE AND INDUSTRIES 13 

Of the occupations of women, homemaking unquestion- 
ably ranks above all others. In the first place, of the 
2,405 women in Winchester nineteen years of age and 
older, 1,857, or 77 per cent., are at home.^ There may 
well be among these, as stated before, a leisure class, but 
homemaking certainly consumes the time, energies, and 
thought of the great majority of these women. In the 
second place, of the 534 women who are engaged outside 
of the home, 44 per cent, are in domestic or personal 
service, that is, in work connected with the home. 

In fact, some form of homemaking appears to be almost 
the only field open to colored women. Of the 147 colored 
women workers, i is in agriculture, 2 are dressmakers, 3 
are in professional service either as teachers or nurses, and 
141, or 96 per cent., are in domestic or personal service.^ 

White women have greater industrial opportunities, 
yet domestic and personal service enlists the largest 
proportion even of these. Of the 387 white women work- 
ers, 95, or 25 per cent., are in domestic and personal ser- 
vice ; industry — chiefly the two textile mills — employs 82 ; 
61 are in professional service, the majority being teachers; 
35 are saleswomen; and 50 are bookkeepers, clerks, or 
stenographers. Finally, 9 are reported as engaged in 
transportation, but these may well be grouped with those 
in clerical occupations, as they serve mostly in a clerical 
capacity.' 

'See Appendix, Table V, between pages 68 and 69. 
^See Appendix. Table V, between pages 68 and 69. 
*See Appendix, Table V, between pages 68 and 69. 



14 



•THE HANDLEY FUND 



OCCUPATIONS AT WINCHESTER 
(Of All Persons Nineteen Years of Age and Older) 



Occupations 



Agriculture 

Skilled Workers: 

Masons 

Carpenters 

Dressmakers 

Foremen 

Mechanics 

Painters and Paper- 
hangers 

Miscellaneous' 

Semi-skilled Workers: 

Textile Industries. . . . 

Other Industries 

Common Laborers 

Trade: 

Bankers 

Retail Dealers 

Salesmen and Sales- 



women 

Miscellaneous. . . . 

Public Service. ..... 

Professional Service: 

Clergymen 

Doctors 

Lawj'ers 

Miscellaneous- . . . . 
Domestic Service . . . 
Clerical Occupations: 

Bookkeepers 

Clerks 

Stenographers. . . . 

Miscellaneous. . . . 

At Home 

.\t School 

In Army 



Total. 



Men 



WHITE NEGRO 



91 

18 
73 

40 
32 

27 
135 

135 
160 
239 

33 
140 

100 
70 
36 

13 
12 
11 
49 



18 

45 

1 

3 

86 
12 
57 



1.636 



13 
2 



1 
202 



1 
11 



Women 



WHITE NEGRO 



40 



13 

65 

17 



35 
1 



61 
95 

13 
12 
34 

1,664 
13 



260 2.064 



3 

141 



193 
1 



341 



Total 



105 

20 
73 

42 
42 
32 

27 
151 

200 
178 
441 

33 
145 

139 

77 
36 

16 

12 

11 

117 

236 

31 
57 
35 
4 
1,954 
26 
61 



4,301 



'This item represents seventeen different skilled trades. 
'The women in this group are chiefly teachers and nurses. 



PEOPLE AND INDUSTRIES 15 

If the several kinds of workers at Winchester are now 
regrouped along the lines suggested above, a better idea 
is obtained of what they are actually doing. This re- 
grouping, showing how these workers are engaged, is ex- 
hibited in tabular form on the preceding page. 

We now have in hand the two local factors that must be 
taken into account in deciding the kind of public schools 
to be provided at Winchester. The first of these is the 
population — the human material with which the schools 
have to do. The second is the occupations — what the 
output or the graduates of the schools find to do. 

Public schools — and all schools, for that matter — are 
confronted with two problems, viz. : (a) How to prepare 
young people to live full personal, family, and community 
lives; and (b) how to prepare them to make an honest 
and honorable living for themselves and those dependent 
upon them. In answer to the first question, most 
thoughtful persons are in accord. The schools pre- 
pare the young to lead full lives when they give to all 
the children of the community, white and colored, the 
best possible general education — an education general in 
the sense that it equips them to meet the obligations of 
personal, family, and community life. 

In answer to the second question, much depends on 
the natural interest and ability of the child, on his prob- 
able vocational destination, and on his occupational op- 
portunities. For Winchester the answer is reasonably 
clear. A general education, such as proposed above, is 
the best possible preparation for doing well and effec- 



i6 THE HANDLEY FUND 

lively what most of the workers of Winchester will find 
to do, whether they remain in Winchester or, in individual 
instances, seek another field. 

This is certainly true of the skilled workers and of the 
semi-skilled and common laborers, who, together, com- 
prise more than half of all those engaged at Winchester 
in active pursuits. Of course, it is possible to establish a 
trade school for the training of skilled workmen in each 
of the many skilled trades; but there is practically no 
market at Winchester for the output of such a school. 
All the skilled trades together, as we have seen, do not 
give employment to more than 8 or 9 new workmen 
annually. To train boys for trades in which they cannot 
possibly find employment would be expensive and un- 
wise. 

Specialized industrial training for semi-skilled and com- 
mon laborers is likewise out of the question. These 
workers are engaged in an infinite variety of tasks. Even 
if the school offered specific industrial training for 
every kind of labor they find to do, it would be a profit- 
less service. As has been pointed out, little or none of 
the work which semi-skilled and common laborers do 
requires either prolonged preparation or prolonged ap- 
prenticeship. ^Most industries are prepared to give such 
special training as is required, and they can do this more 
effectively and more economically than the school. 

While Winchester does not need and could not really 
use a technical school, unquestionably proper provi- 
sion should be made in its public schools for such indus- 



PEOPLE AND INDUSTRIES 17 

trial work as has general educational significance. In 
addition, there should be provided at least two or three 
different kinds of industrial instruction which will have 
vocational as well as general value. 

The first and most obvious kind of practical instruction 
of a general character for the schools of both the white 
and the colored is work in household arts. The house- 
hold arts include sewing, cooking, dressmaking, milli- 
nery, home sanitation, home decoration, etc. Such in- 
struction would serve all the women of Winchester who 
have no occupation other than homemaking. At the 
same time it would directly prepare women to enter 
skilled trades, such as dressmaking and millinery, and it 
would provide the best possible practical preparation for 
those who go into domestic service — i.e., 44 per cent, of 
all women workers. 

Similarly, there should be provided for all boys ample 
manual and shop opportunities, including at least wood- 
work, sheet metal, forge, and machine shop practice. 
None of these shops need be elaborate, nor would the in- 
struction aim to prepare boys simply to become car- 
penters, tinners, or machinists. Such instruction would 
be helpful to any boy who afterwards decided to enter one 
of the hand trades or to become a skilled worker, and at 
the same time would furnish all boys with experience in 
hand work and in work with typical modern machinery. 

The statistics above presented also suggest the need 
of practical instruction in business in the schools for the 
whites. Approximately a fifth of all white workers are 



i8 THE HANDLEY FUND 

engaged in trade and in clerical occupations. It is true 
that, while many different kinds of business are repre- 
sented at Winchester, relatively few persons are engaged 
in any one kind, so that it would be impossible to give 
direct preparation for entrance upon a particular kind of 
business. There is, however, as pointed out before, a 
common body of knowledge and technique underlying 
all business and clerical occupations. Hence, a business 
course of broad scope would unqijestionably serve a 
useful and practical purpose. 

The statistics indicate, further, that agriculture is 
needed in the schools of both races. Agriculture, it will 
be remembered, engages more of the men of Winchester 
than any other single pursuit and is, to a greater extent 
than any other activity, the foundation of its prosperity, 
present and prospective. Young people coming up 
from the country to the Winchester schools will, in some 
instances, at least, want to prepare for life in the open. 
Therefore, whatever the schools do to prepare young 
people for farming, and whatever they do toward advanc- 
ing the science and practice of agriculture, especially ii 
the hne of pomology, will contribute not only to the prac- 
tical equipment of those wanting such instruction, but 
also to the prosperity and basic development of the city. 

Finally, the close relationship between Winchester and 
its immediate environment might well be considered in 
making educational plans. The rural sections find in- 
creasing difficulty in securing well prepared and efficient 
teachers. Winchester itself now has 64 women in pro- 



PEOPLE AND INDUSTRIES 19 

fessional service, mostly teachers; in fact, teaching is one 
of the principal occupations of its white women. The 
number of women who in the future choose teaching 
as an occupation will doubtless increase rather than 
decrease. With the need of the rural sections for well 
trained teachers, on the one hand, and the desirability 
of Winchester's having an appropriate outlet for its 
women workers, on the other hand, it would seem the 
part of wisdom for the public schools of Winchester to 
provide training for rural teachers as a graduate course 
beyond the high school. 

How much of this suggested program are the schools of 
Winchester now carrying out? It is the object of the 
next chapter to ascertain, by inquiring into their re- 
sources, equipment, and programs. 



II. THE SCHOOLS OF WINCHESTER 

THE plant of the Winchester public schools for 
white children consisted, at the time of this 
study, of nineteen rooms — fourteen in the John 
Kerr building, and five in the Wall property, a rented 
residence. The colored children occupied the Old School 
Baptist Church, more commonly known as the "Old 
Stone Church," which supplied three rooms — two in the 
main structure and one in the frame lean-to extension. 
There is a seven year elementary course for both white 
and colored children, and a four year high school course 
for white children. During the school year 1916-17, 
the schools had a total enrollment of 1,1 11. Of these, 
929 were white children — 787 in the elementary and 142 
in the high school. The colored schools enrolled 182 
pupils. These children were instructed by twenty 
white and three colored teachers, at a total current ex- 
pense for all purposes of $16,601.71. Of this amount, 
the City Council appropriated, or there was raised by 
local taxation, $11,500; the remainder came from the 
state and from tuition fees of children living in outside 
districts. The total current cost per pupil on the basis 
of the total enrollment (1,1 11) was, accordingly, $14.94, 
and $20.73 on the basis of average daily attendance (801). 



THE SCHOOLS OF WINCHESTER 21 

The position occupied by the Winchester public 
schools in public esteem, what they now are, and what 
their needs are can be appreciated best in the light of a 
brief historical survey. 

The public schools of Winchester first opened their 
doors for the reception of pupils in February, 1871. Two 
private schools, one for boys and one for girls, each hav- 
ing two rooms, were taken over and made into public 
schools. The Board of District Trustees also rented 
three additional rooms, inaugurating the white schools 
with seven teachers. Two rooms and two teachers were 
provided for colored children. There are no records 
of the attendance at this first session. But 285 white 
and 117 colored children were enrolled during the school 
year 187 1-2, a total of 402, with an average daily atten- 
dance of 259. 

The increase to the present enrollment (1,1 11) is due 
to two factors: (a) the growth in the school population, 
that is, of children between six and eighteen years of 
age; and (b) the increased proportion of the school popu- 
lation attending the public schools. For example, 
the white school population — children between six and 
eighteen years of age — has increased from 632 in 187 1 to 
1,007 i^ iQi?' ^ growth of 59 per cent.^ At the same 
time, the white school enrollment rose from 285 in 187 1-2 
to 929 in 1916-17, an increase of 226 per cent. The 
increase in average daily attendance is even more strik- 
ing, amounting to 258 per cent., a growth from 197 in 

^See Appendix, Table VI, page 68. 



22 THE IIANDLEY FUND 

1 87 1-2 to 705 in 191 6-1 7. In a word, the white school 
enrolhnent and average daily attendance have increased 
approximately four times more rapidly than the white 
school population, with the result that the proportion 
of children between six and eighteen years of age who 
attend school has increased from approximately 45 per 
cent, in 187 1-2 to approximately 92 per cent, in 1916-17. 

Perhaps the school census has not always been equally 
complete; perhaps the number of children under six 
years of age and of pupils nineteen years of age and 
older who attend school now is larger than formerly; 
perhaps the number of children enrolled from out- 
side rural districts has increased in recent years,^ thus 
accounting in part for the larger proportion of the school 
population in the public schools. In any case, it is 
certain that the pubHc schools are reaching a larger 
and larger proportion of both the white and colored 
school population. In other words, the idea of public 
education at public expense has won a victory at Win- 
chester, and the public schools are becoming more and 
more the schools of all the people. 

This growth in public confidence has been accompa- 
nied by a somewhat larger service on the part of the 
schools, as is indicated by the expansion of the high 
school program, particularly in recent years. 

The establishment of public schools marked no radical 
break between what the private schools of the city at- 
tempted and what the public schools undertook to do. 

'There were s8 such white children enrolled November, 191 7. 



THE SCHOOLS OF WINCHESTER 23 

In fact, the courses of study — both the elementary and 
the secondary — of the two private schools taken over 
by the Board of District Trustees became by common 
consent the courses of the public schools. Accordingly, 
the elementary public school course at the beginning 
covered seven years. Since 187 1, its length has been 
twice changed, being extended in 1885 to eight years and 
in 1908 reduced to seven years, its present length. 

The first elementary program included the conven- 
tional and formal studies of the day — reading, spelling, 
grammar and composition, handwriting, arithmetic, 
geography, and history. For approximately forty years, 
or until 1908, no changes were made in the program, 
though there was during this period doubtless some 
change in the subject matter actually taught in branches 
like reading, arithmetic, and geography, as new text- 
books came into use. 

The years since 1908 have witnessed only slight modi- 
fications. The state course of study for elementary 
schools,^ now followed by the Winchester schools, pro- 
vides, in addition to the fundamental studies mentioned 
above, music and drawing for all grades, for the iirst 
four grades constructive work besides, and for the three 
upper grades physiology and industrial work. In con- 
sequence, there is now in the lower grades of the Win- 
chester schools enough music, drawing, and constructive 
work to give color to the instruction. In the fifth, sixth, 
and seventh grades physiology receives attention, while 
^State Course of Study for Elementary Schools, 1915. 



24 THE HANDLEY FUND 

music and drawing are incidental; but there is no indus- 
trial work, such as manual training for boys, and no 
cooking or sewing for girls. In a word, despite the 
changes the last half century has wrought in our indus- 
trial, political, and social life, and despite our changed 
ideas of the educational needs of children, the elemen- 
tary program of the Winchester public schools has been 
but slightly modified; it is still decidedly bookish. 

On the other hand, the high school program has been 
much improved. As suggested above, the public schools 
not only adopted the elementary but also the secondary 
program of the two private schools taken over by the 
Board of District Trustees. This first public high 
school course was narrow in its opportunities and dis- 
tinguished by the prominence of the traditional high 
school studies, such as Latin and mathematics. It cov- 
ered three years, as follows: 

First year: English grammar and analysis 

Elementary algebra 

Latin grammar and exercises 

Natural philosophy 

Ancient history 

Bookkeeping 

Higher arithmetic 
Second year: Rhetoric and composition 

Algebra 

Elementary geometry 

Latin grammar and exercises 



THE SCHOOLS OF WINCHESTER 25 

Latin reader 
Physiology 

History of the Middle Age» 
Third year: History of English literature 
Algebra 

Geometry and trigonometry 
Arnold's Prose Composition 
Cccsar 
Chemistry 
Modern history 

In 1885, the high school course was reduced from three 
to two years. This change was, however, not significant. 
In the first place, part of the high school work eliminated 
was put in the eighth grade, the course of the elementary 
schools being extended to eight years at this time. In 
the second place, the new high school course was really an 
improvement over the old, since it recognized certain 
modern tendencies. For example, the amount of re- 
quired mathematics was reduced, and physical geography 
and physiology introduced. Drawing was also added 
for girls. The new course was as follows : 

Male High School 



JUNIOR 


SENIOR 


I. Physical geography 


I , Natural philosophy 


2. English grammar 


2. English grammar and 


and composition 


composition 


Spelling 


Physiology 



26 THE HANDLEY FUND 



I. 



2. 



Algebra 


3. Algebra 


Arithmetic 


4. Geometry 


Bookkeeping 


Latin 


Latin 




Female High School 


JUNIOR 


SENIOR 


Reading 


I. Reading 


Spelling 


Spelling 


Arithmetic 


Arithmetic 


Physical geography 


2. Natural philosophy 


English grammar 


3. English grammar 


Physiology 


4. Algebra 


Algebra 


Drawing 


Drawing 





A distinction existed from the beginning between the 
high school for boys and the high school for girls. The 
difference, however, consisted at first chiefly in the fact 
that the boys and girls recited in separate classes. Later 
there was a tendency to provide more liberally for boys 
than for girls. This tendency, evident in 1885, became 
pronounced in 1902, when the high school program 
for boys was considerably extended, without correspond- 
ing improvement for girls. A single course served the 
girls, departing only slightly from the course of 1885. 
In contrast, three separate programs were instituted 
for boys: a classical course, containing Latin; an Eng- 
lish course; and a business course, which included, in 



THE SCHOOLS OF WINCHESTER 27 

addition to bookkeeping and commercial law, both 
stenography and typewriting. 

However, six years later, the high school course was 
extended to three years, the distinction between the "male 
high school" and the ''female high school" dropped, 
and equal opportunities were provided for boys and girls; 
two years later, 19 10, the course was lengthened to four 
years. The State Board of Education now classifies 
the Winchester high schools as first grade. Four differ- 
ent, though closely related, programs are provided, all 
conforming to the minimum state requirements^ and open 
alike to boys and girls. These may be characterized as 
the classical course, the modern language course, the 
general course, and the business course. The graduates 
of all save the last enter without difficulty the principal 
colleges and universities of the South. Nevertheless, 
despite these improvements, the Winchester high school 
compares unfavorably with the "better high schools of 
the country; the programs are still too bookish, lacking 
particularly provisions for physical education, science, 
and practical work such as manual and shop instruction 
for boys and household arts for girls. 

Nothing beyond the elementary grades has been pro- 
vided for colored children. The colored elementary 
schools follow in the wake of the white schools, doing 
work of much the same kind. 

The extension of the school program, particularly of 
the high school, along with the growth in enrollment, led 

^State Course of Study for High Schools, 1915-16. 



28 THE IL\NDLEY FUND 

to an enlargement of facilities. On the one hand, the num- 
ber of teachers employed has risen from 8 in 187 1-2 to 
23 in 1916-17.^ There has, however, been only a slight 
decrease during all these years in the number of pupils a 
teacher is expected to teach. The average per teacher in 
the seventies, eighties, and nineties ran well over 50; 
and at present the average number of pupils per teacher 
in the white elementary schools is 48;- in the colored 
schools it is still higher and in both it is altogether too 
high for satisfactory results. 

To accommodate the very large classes, particularly 
in the first two grades, it has of late years become the 
practice to divide the class, one section coming to school 
in the forenoon and the other section coming in the 
afternoon. This device reduces the number of pupils 
under the teacher at any one time, but the children get 
only a half instead of a whole day's schooling. 

If the number of pupils a teacher is expected to teach 
has not materially decreased, teachers are, at any rate, 
better paid than formerly. For example, the average 
salary has risen from $373, in 1871-2, to $514, in 1916-17, 
with a decided advance since 1910-11.^ Still, Win- 
chester pays exceedingly low salaries — low even when 
compared with those paid by other Virginia cities of ap- 
proximately the same size."^ For of the seven cities of 



'See Appendix, Table VIT, page 69. 
^See Appendix, Table VIII, page 70. 
'oee Appendix, Table IX, page 71. 
*See AppendLx, Table X, page 71. 



THE SCHOOLS OF WINCHESTER sg 

Virginia having a school population of between one 
and two thousand — and this includes Winchester — 
only two pay less than Winchester and four pay more; 
Fredericksburg, for example, pays on the average $80 
more. 

In the school as well as in the business world, there is 
a close relation between salaries and quality of service. 
Receiving lower salaries than is customary, it is not sur- 
prising that the teachers of Winchester, taken as a body, 
are not well prepared either academically or profession- 
ally. Teachers in an elementary school should possess 
at least a high school education followed by two years 
of normal school training, and high school teachers — 
certainly of the usual branches — should be college grad- 
uates. Measured by these standards, not more than 
six of the twenty white teachers of Winchester can be 
said to be adequately prepared for their work. 

Close and adequate supervision might partly over- 
come this handicap, but the Winchester schools are not 
closely supervised. The supervision of the division 
superintendent, who has many other duties, has been 
merely nominal. The principal of the Winchester 
schools has always been a teaching principal, having 
not only to look after the routine of the school, but also 
to teach an entire class or a number of different classes 
for a period or two daily. Not until 1886 was he given 
any free time at all for supervision, and even at present 
he has only about half of his day for the management 
of the schools and for supervision, with the result that 



30 THE HANDLEY FUND 

he Is able to do very little toward helping weak or inex- 
perienced teachers. 

With the increase of pupils and teachers, more space 
and more equipment have had to be provided. The pub- 
lic schools for both races at first occupied rented quarters. 
In 1875, the Board of School Trustees requested $7,000 
from the City Council to build at public expense a school 
for white children. The request was refused. From the 
standpoint of public sentiment, it is probably unfor- 
tunate that at this time the will of John Kerr left the 
residue of his estate to be used "for the education of the 
poor white children of the city." 

It was decided to use this legacy to secure a perma- 
nent home for the white schools. The legacy, amounting 
finally to about $10,000, did not become available until 
1882 and thereafter. To tliis sum the City Council 
added in all something over $6,000, and the whole 
amount was used to erect the John Kerr public school, 
the corner stone being laid in 1883, and the building 
first occupied in 1884. The building was a good ex- 
ample of the school architecture of the day, providing 
eight classrooms and a basement. 

The delay had been so prolonged that the new quar- 
ters when opened were scarcely adequate to accommo 
date the enrollment. An additional room had to be 
rented the very next year. In fact, by 1888 the need of 
more rooms became so pressing and the difficulty of 
securing suitable rented quarters so great that the Board 
of Education petitioned the City Council, though in 



THE SCHOOLS OF WINCHESTER 31 

vain, for funds for ^another building. Partial relief was 
now sought by equipping two basement rooms in the 
John Kerr school. Though the Board of Education recog- 
nized and officially stated that these rooms were "un- 
safe and dangerous to the health of pupils and teachers," 
they were in continuous use for more than a decade. 

The need for more room was finally met in 1908 by a 
six room addition to the John Kerr building; at the same 
time a new heating plant was installed and toilets added 
to the old building, at a total cost of about $16,000. 
These additional facilities stemmed the tide for a year or 
two, when it again became necessary to rent outLide 
quarters. There were in November, 191 7, five such 
rented rooms, all located in the Wall property, and all 
unsuited to school purposes. 

The fourteen rooms of the John Kerr school are ordi- 
nary classrooms, and, with the exception of the lower mid- 
dle one of the addition, which is very poorly lighted, are 
reasonably well adapted to the needs of a conventional 
elementary school. However, the high school occupies the 
three upper rooms of the addition and it is only by dint of 
using sliding doors and partitions that they are made to 
answer at all. Moreover, if the elementary classes were 
reduced to proper size and the classes now on half day 
session were given a full school day, the elementary 
school alone would require five additional rooms, to say 
nothing of the pressing need of the high school for larger 
and better quarters. 

Of the educational equipment of the white schools 



32 THE HANDLEY FUND 

there is little to say. It is of the conventional sort and 
meets more or less adequately the requirements of a 
bookish school. It would, however, be wholly inade- 
quate for a school offering an extended program. For 
example, there are no gymnasium, baths, playgrounds, 
school gardens, auditorium, manual training and indus- 
trial shops, household arts rooms, practically no labora- 
tories for high school science, and no provision whatsoever 
for nature study and general science in the elementary 
school — all of which are to be found in our best public 
schools. 

The situation in the colored schools is much the same. 
Like the white schools they first occupied rented quarters, 
one class in the Old School Baptist Church and one in the 
Bethel Church. These colored classes remained here 
until 1876, when the Board of School Trustees secured 
free of cost a lease for ninety-nine years of the Old 
School Baptist Church — more generally known as the 
"Old Stone Church." Two classrooms were fitted up 
for something like $650. Of this sum, $400 came from 
the sale of the Medical School site, which the School 
Board inherited when the Medical College was aban- 
doned. 

The number of colored classes increased to three in 
1883, but the added class occupied rented quarters. In 
the meantime, the "Old Stone Church" fell into bad 
repair, and by 1886 became unsafe. Something had to 
be done. On application of the School Board the 
county court extended the lease of the "Old Stone 




Forge Shop 




Wood Shop 



THE SCHOOLS OF WINCHESTER 3^ 

Church" to five hundred years. The two gables and 
the roof were now rebuilt and a frame lean-to extension 
added, at a total expenditure of approximately $525, 
thus providing three classrooms, all of which are still 
in use. That they are entirely inadequate and unsuited 
goes without saying. 

To summarize, Winchester is face to face with an 
acute building problem. If the present demands seem 
large, it should be remembered that during the entire 
history of her public schools less than $23,000 of pubHc 
money, exclusive of rent, has been expended for white 
school buildings, and less than $800 for buildings for 
colored schools. No other city of Virginia of equal size 
has spent so little, Winchester having a capital invest- 
ment in school property of only $24.98 per child of the 
school population.^ In contrast, Fredericksburg, the 
city nearest, has an investment of $27.72, while Bristol 
has an investment of $117.46. 

The result is that white children have been almost 
continuously housed in rented quarters. It should, 
however, be stated that the crowded condition of late 
has been permitted to continue partly because it seemed 
desirable to await the final disposition of the Handley 
Fund. 

The growth of the schools has been accompanied 
by an increase in the total current school expense, and 
also by an increase in the current per pupil cost. Begin- 
ning in 187 1-2 with a total current expense of $3,912.05, 

'See Appendix, Table XI, page 72. 



34 THE HANDLEY FUND 

expenditures aggregated in 1916-17 $16,601.71.' But 
not all of this money was or is raised locally. As has 
already been stated, appropriations by the City Council 
provide part of it, the state provides part of it, and part 
of it comes from tuition fees and miscellaneous revenues.^ 

Although money is received from these different 
sources, it is significant that an increasing proportion 
of the current school expense is derived from appropri- 
ations by the City Council, that is, raised by local tax- 
ation. Such appropriations in 187 1-2 equaled only ^S 
per cent, of the total current expense of the schools, 
whereas in 1916-17 they equaled 69 per cent.,^ irrefut- 
able evidence that the people are increasingly wilHng to 
provide proper and adequate support. Despite this 
growth, Winchester lags far behind other Virginia 
cities in taxpaying liberality. Land at Winchester is 
assessed unusually low, and the tax rate is also un- 
usually low. Both are probably lower in Winchester 
than in any other city of Virginia.'* 

As suggested above, there has been an increase in 
the current per pupil cost.^ This has risen, on the 
basis of total enrollment, from $9.73, in 187 1-2, to 
$14.94, in 1916-17, and, on the basis of average daily 



'See Appendix, Table XII, page 72. 

*For a number of years Winchester received liberal allowances from the 
Peabody Fund. 

'See Appendix, Table XIII, page 73. 
<See Appendix, Table XIV, page 74. 
*See Appendix, Table XII, page 72. 



THE SCHOOLS OF WINCHESTER 35 

attendance, from $15.10 to $20.73. Most of the rise, 
however, has occurred within the last decade. But 
even the present per pupil expense is extremely small — 
even small as compared with that of other Virginia cities 
of about the same size, at most only three spending less.^ 
Indeed, it is so small that good modern schools cannot 
possibly be provided at any such per pupil outlay. 

This inadequate support is reflected throughout the 
system, and accounts for the present narrow and con- 
ventional elementary course of study, the limited high 
school advantages, the employment of inadequately 
prepared teachers, the lack of proper supervision, and 
the dearth of suitable buildings and equipment. 

iSee Appendix, Table XV, page 75. 



III. NEEDS OF THE WINCHESTER SCHOOLS 

IN THE light of the facts developed in the two pre- 
ceding chapters, what arc the needs of the Win- 
chester schools, if :iiey are to render full service to 
the community and to the youth of the city? The ques- 
tion can be answered most satisfactorily in the light of 
what progressive schools which face similar conditions 
elsewhere are seeking to accomplish. 

Our best public schools realize that a narrow and 
bookish curriculum does not provide an all-round 
training and does not adequately equip children for 
adult responsibilit'es. Hence, progressive schools are 
extending and diversifying their programs, thus seeking 
to provide for the development of the body as well as the 
development of the mind. The formal and bookish 
studies, like spelling, arithmetic, and grammar, arc of 
course as important as ever; but attention is also given 
to play, recreation, and physical training, because 
health, bodily development, and physical vigor are 
of growing importance both to the individual and to 
the community. Nature study, school gardens, science, 
music and the fine arts, manual and industrial shop work 
for boys, and the household arts for girls provide useful 
experience and training. Finally, special classes in the 

36 



NEEDS OF THE WINCHESTER SCHOOLS 37 

lower grades and optional courses in the upper grades 
enable the school to recognize individual differences in 
physical endowment, mental ability, interest, and voca- 
tional outlook. 

Our best public schools also realize that the old type 
of school organization — a teacher for each class and for 
each classroom — is not adapted to the requirements 
of an enriched and diversified program. Progressive 
schools are therefore developing a new type of organiza- 
tion, which calls for a new grouping of the different 
school grades and for a further division of work among 
teachers. The new type of organization gives children 
more freedom, and provides abundant opportunity for 
participation in group activities; at the same time it 
fosters habits of correct thinking and proper self control. 
It permits teachers, particularly in the upper grades, to 
confine their attention to one or two studies, thus favor- 
ing the development of teaching efficiency; it also permits 
a maximum use of teachers, buildings, and educational 
equipment — an important consideration as public edu- 
cation becomes more costly. 

In view of the best practice of progressive schools, 
nothing short of a complete reconstruction of the public 
schools of Winchester will answer, if they are to do effec- 
tively the work that lies before them. It need hardly 
be said, however, that education is a constantly develop- 
ing art and that, therefore, even with a largely increased 
outlay, no system of public schools can be created which 
will suffice for all time. Furthermore, the discussions and 



38 THE HANDLEY FUND 

suggestions contained in this report are not designed to 
control local action even at present, still less in the dis- 
tant future. They are meant rather to indicate the kind 
of educational organization and opportunity approved 
by the most competent contemporary thought. Doubt- 
less, additional and different suggestions of value will be 
made by others, and, in course of time, steps not now 
thought of will and should be taken. 

In this spirit it may be suggested, first of all, that the 
white schools of Winchester require a change in organi- 
zation. They are now divided into an elementary school, 
with a seven year program for grades i to 7, and a high 
school, with a four year course for grades 8 to 11. Pro- 
gressive schools are now preferably organized on what is 
known as the six- three-three plan. Besides a kinder- 
garten of one year, they have an elementary school of 
six years for grades i to 6, a junior high school of three 
years for grades 7 to 9, and a senior high school of three 
years for grades 10 to 12. Thus a year would be added 
to the school course, bringing Winchester in line with 
other progressive American cities. This arrangement 
may not always be best. It has, however, undoubted 
advantages at this time, and can be modified in the 
future, whenever modification becomes advisable. 

After organization on the six-three-three plan, the 
next need of the Winchester schools is an extended pro- 
gram for each of the three units. According to the 
present practice of progressive schools, the elementary 
school program, that is, the program for grades i to 6, 





"" 1 


Evf: 


7] 


^ m 




1 

■i 


«" 




en 

1: « 






NEEDS OF THE WINCHESTER SCHOOLS 39 

would include those studies and activities which all pur- 
sue in order to gain command of the tools of learning 
and to acquire that general development and common 
body of knowledge, ideals, and standards of conduct 
essential to living in a democracy. Such a program 
would include the so-called fundamental studies: reading, 
spelling, composition, handwriting, arithmetic, geog- 
raphy, and history. It would also include music, free- 
hand and mechanical drawing, nature study, and school 
gardening, and, for the first four grades, handwork, and 
for the two upper grades abundant opportunity to par- 
ticipate in a variety of household and industrial activi- 
ties. Finally, such a program would give prominence 
to play, recreation, and physical education, including 
medical inspection and the foUow-up services of a school 
nurse. 

Lest the program above outlined appear altogether too 
extended for young children, it should be remembered that 
the Elementary State Course of Study,^ prepared by the 
Virginia Department of Public Instruction, recommends 
most of what is here proposed. Besides, the only part 
of such a program all pupils take all the time is the 
fundamental studies, with play and physical training. 
They pursue activities Hke shop work and drawing for a 
term or a year, and then take up others, such as nature 
study and gardening, for a given period. The children 
thus rotate from study to study, but this rotation is so 
ordered that each study is pursued a prescribed length of 
'Elementary State Course of Study, 191 5. 



40 THE HANDLEY FUND 

time. This arrangement permits children to participate 
in a variety of activities and yet at no time are they over- 
burdened. 

The junior high school, that is, grades 7, 8, and 9, 
carries forward the program of the elementary school on 
an advanced plane. For example, nature study gives 
way to science of a more systematized type, freehand and 
mechanical drawing are differentiated, and the practical 
opportunities for boys and girls are somewhat specialized, 
the boys entering the manual and industrial shops, 
the girls going to regular instruction in the household 
arts, including at least cooking and sewing. New stud- 
ies and activities are added, in order that the jum'or high 
school may take account of individual differences in 
physical endowment, mental ability, and vocational 
outlook. Accordingly, the junior high school provides 
Latin, modern foreign languages, geometry and algebra, 
and introductory work in bookkeeping, stenography, 
and typewriting. Of course, no child can take all these 
studies. It is possible, however, within limits, to select 
for each child the program suited to his particular needs 
and ambitions, the choice being based on the prefer- 
ences of the child, of his parents, and the advice of the 
school principal. To facilitate selection, the program 
of the junior high school might be organized into three 
different courses, each with its peculiar emphasis; for 
example, an academic course for children intending 
to go to college; a commercial course for those who 
propose to enter business on the completion of the junior 



NEEDS OF THE WINCHESTER SCHOOLS 41 

or the senior high school; and, finally, an industrial 
course for children who are looking forward to an early 
entrance into industry. 

The senior high school, that is, the program for grades 
10, II, and 12, carries forward and intensifies the division 
of courses begun in the junior high school, thereby 
permitting the senior high school to take further account 
of individual differences, needs, and ambitions. This 
requires a further extension of studies and activities. 
For example, the program will provide varied opportuni- 
ties in history — United States, modern, medieval, and 
ancient — and intensive work in most of the old-line 
studies, such as English, Latin, modern foreign languages, 
and mathematics. The sciences include at least zool- 
ogy, botany, chemistry, and physics. The commercial 
instruction begun in the junior high school is expanded. 
The practical instruction for boys includes still more 
specialized practice in woodwork, forge, sheet metal, 
and machine shop, while the girls have cooking, dress- 
making, millinery, laundry, home sanitation, home 
decoration, etc. As previously pointed out, there is 
particular need at Winchester of ntensive instruction 
in agriculture, and a post graduate course for teaching 
in the rural schools is much to be desired. 

To facilitate intelligent selection from a somewhat wide 
range of opportunities, it is the common practice to organ- 
ize specific courses, in which part of the work is required 
and part is left to the choice of the student. Should this 
practice be followed at Winchester, the senior high school 



42 THE HANDLEY FUND 

might oflfer (a) an academic course for all going to college 
or higher technical schools; (b) a general course for those 
neither going to college nor intending to enter gainful 
pursuits; (c) a commercial course for those going di- 
rectly into business; (d) an agricultural course for those 
expecting to take up agriculture; and (e) a teacher train- 
ing course for those wishing to prepare to teach in the 
rural schools. In all these courses there is, to be sure, a 
large common core, that is, much work that all students 
take irrespective of the particular programs they may 
have chosen, so that the diversity of instruction is not so 
great, after all, as it appears to be. In any event the 
various courses of study above mentioned are, as has 
been already stated, to be regarded merely as suggestions 
indicating what has now become possible in the field of 
education. Specific decision as to precisely what should 
be offered may well be deferred, and whatever policy is 
adopted, adjustments must be made from time to time. 
Should the Winchester schools be reorganized in some 
such fashion as above suggested, their effective adminis- 
tration and supervision will require more than a principal 
who has only a part of his time free from teaching. A 
superintendent' will be needed who can devote all his 
energies to administration and supervision. His pri- 
mary interest, however, should center in the improvement 



*In order that Winchester may have a superintendent of its own, Win- 
chester will need to be made a separate school district. The power to do 
this is vested in the State Board of Education, as is also the power to 
appoint the superintendent (Sec. 132, Constitution of Virginia). 



NEEDS OF THE WINCHESTER SCHOOLS 43 

of the subject matter and methods of instruction, and in 
improving the quality of classroom teaching. This 
service would call for supervisory talent of a high order. 
The superintendent's academic and professional prepa- 
ration should be broad and liberal; he should be a man of 
progressive sympathies, with a record of previous suc- 
cess. 

Likewise, teachers of high grade will be required. 
These will be of two kinds — regular teachers and special 
teachers. Regular teachers teach the fundamental 
studies, such as reading, arithmetic, and geography, in 
both the elementary school and the junior high school, 
and the old-line studies, such as Latin, English, mathemat- 
ics, and history, in the senior high school. The qualifi- 
cations of regular teachers differ somewhat according as 
they teach in the grades, the junior high school, or the 
senior high school. Irrespective, however, of where they 
teach, they should all be well trained both academically 
and professionally, and be of proved efficiency. Among 
the special teachers will be teachers of play and physical 
training, of music, freehand and mechanical drawing, of 
nature study, biology, physics, chemistry, and agricul- 
ture, of manual and industrial work for boys, of the 
household arts for girls; and, finally, there should be 
employed a training teacher, a school physician, and a 
school nurse. Each of these should be a specialist in 
his or her respective field. 

Finally, proper building faciUties and educational 
equipment wiD have to be provided. Cities having such 



44 THE K\NDLEY FUND 

programs find that to secure the needed space for free 
play, recreation, school gardens, experimental farm 
(for the agricultural course), and a general athletic 
field, an ample school site must be secured. Two dif- 
ferent kinds of rooms are needed for instruction: regular 
rooms for the fundamental studies of the elementary 
and junior high schools and for the old-line studies of the 
senior high school, and special rooms suited to the re- 
quirements of particular act'vities. For example, the 
physical training equipment includes gymnasium, swim- 
ming pool, shower baths, locker and dressing rooms. 
Rooms of special design are required for the library, the 
fine arts, and mechanical drawing. The science equip- 
ment comprises a nature study room, a general science 
room, and separate laboratories for biology, chemistry, 
physics, and agriculture. The commercial branches 
need specially equipped rooms for typewriting, stenog- 
raphy, and bookkeeping. Proper provision must also 
be made for manual and practical work. 

The general service portions of a modern building 
include sanitary toilets and lockers, storage rooms, 
rest and study rooms for the teachers, reception, 
inspection, and ofiice rooms for the school physician 
and school nurse, reception room and offices for the 
principal, and, finally, a cafeteria for the school luncheon, 
and an auditorium which varies in size according as 
it is used for school purposes alone or serves also 
the recreational, intellectual, and civic needs of the 
community. 



NEEDS OF THE WINCHESTER SCHOOLS 45 

The difference between the ordinary box-like school- 
house and a modern school plant is thus striking. The 
difference is, however, an essential one and not an extrav- 
agance. When the school appealed almost entirely to 
the head, rectangular rooms on either side of a hallway, 
furriished with fixed desks which children occupied hours 
at a time, sufficed. When, however, the whole child is 
put to school — his body as well as his mind — facilities 
and equipment of an altogether different type are re- 
quired. Nor are the building provisions suggested 
above a mere dream; they already exist in some cities. 

The reading of the preceding pages has doubtless 
raised the question: What would such schools at Win- 
chester cost? This depends, in the first place, on whether 
there is a single plant for all white children, or whether 
there are two elementary schools, the one a separate 
plant and the other connected with the junior and senior 
high schools. 

The single plant is undoubtedly preferable on the 
score of economy and efficiency. A moment's con- 
sideration will make this point clear. A modern 
elementary school must contain regular classrooms, play- 
grounds, gymnasium, industrial arts rooms, auditorium, 
etc. There must be provided also most of the general 
service portions of a modern building. Therefore, 
to have two elementary schools involves duplicating 
most special facilities and most general service features. 
Obviously, a single good sized playground for boys and 
one for girls will serve all the white children of the city; 



46 THE HANDLEY FUND 

a single gymnasium, a sing'e swimming pool, a single 
auditorium are ample for all; a single central plant also 
obviates duplication of heating plants, storage space, 
reception room and offices for the school doctor and 
nurse, and reception room and offices for principals. In 
a word, to provide two small elementary schools, even 
though one of these is in connection with the two high 
schools, will probably increase as much as a third the 
first cost of the special facilities and general service fea- 
tures distinctive of a modern plant. 

It also costs more to operate two small schools than a 
single large plant. The number of furnaces to be 
kept going, the number of head janitors or custodians, 
and the number of principals increase with the multipli- 
cation of buildings. Quite as serious financially is the 
difficulty, in small schools, of making full use of the time 
particularly of special teachers. Even in a large build- 
ing there is some loss from this cause; nevertheless, the 
large plant is favorable to the most efficient use of all 
the time of all the teachers and is hence favorable to the 
conduct of the school at a minimum cost. 

The management and supervision of the schools are 
also simplified. The possibility of division of interest on 
the part of the superintendent is obviated. Unity of aims 
among teachers is more easily achieved, and teachers are 
more easily brought to work as a team. 

Of scarcely less importance is the civic significance of 
a single, imposing plant in a small community. Such a 
plant inevitably quickens respect for the public schools 



NEEDS OF THE WINCHESTER SCHOOLS 47 

and arouses pride in them. It provides a common meet- 
ing place for all, children and adults alike, and readily be- 
comes the intellectual, recreational, and civic center of 
the entire community. By thus fostering growth in 
mutual respect and fellow feeling, a central school 
contributes powerfully to civic unity and democratic 
solidarity. A single school for Winchester is, there- 
fore, economically, educationally, and socially desir- 
able. 

To accommodate the present school enrollment and 
future increases up to 1,500 pupils will require a 42 room 
building, exclusive of general service quarters, gym- 
nasium, and auditorium. A modern plant of this size, 
exclusive of grounds, would in ordinary times cost about 
$400,000, or $250 per pupil. 

The estimated size of the building rests on the follow- 
ing considerations : To add a kindergarten and to extend 
the elementary course a year win probably bring 100 new 
pupils into the schools, increasing the present enrollment 
(929) to over 1,000. The enhanced attractiveness of 
the schools will in the near future add from Winchester 
and the outlying districts probably another 200, making 
a total enrollment for the immediate future in excess 
of 1,200. To accommodate these children, scattered 
from the kindergarten to the last year of the senior 
high school, will require at least one kindergarten for 50 
children, 21 classes in the elementary school (grades i 
to 6, inclusive), 9 in the junior high school (grades 7 to 
9, inclusive), and at least 9 sections in the senior high 



48 THE HANDLEY FUND 

school.* Altogether these classes will occupy not less 
than 40 rooms. This would leave in reserve two class- 
rooms, the auditorium, and the gymnasium, and a con- 
siderable leeway in the size of classes, particularly in the 
senior high school — ample for a total school enrollment 
up to 1,500 children. 

The estimated cost of the proposed building is based on 
the experience of other cities. For example, the newer 
modern elementary buildings of Boston, exclusive of edu- 
cational equipment, are costing from $209 to $258 per 
pupil; of Cleveland, from $150 to $208 per pupil; of St. 
Louis, from $192 to $240 per pupil;- while the Froebel 
building at Gary, Indiana, erected in 191 1- 12, which 
represents the type of building that Winchester needs, 
cost, including educational equipment, $355,945.80 with 
an additional $77,571.75 for grounds and improvements, 
making a total of $433,517.55- 

What now of the colored schools? The reasons ad- 
vanced for the reconstruction of the white schools hold 
good for the colored schools. But in their reorganiza- 
tion, three pertinent factors should be kept in mind: (i) 
the small number of colored children to be instructed; (2) 
their special need of practical education; and (3) the 
needs of the colored people of Winchester as a whole. 

The colored population of Winchester is decreasing; 
it now numbers only 908, and the outlying districts 



'See Appendix, Table XVI, page 76. 

•School Buildings and Equipment, by Leonard P. Ayres and l^Iay 
Ayres, pp. 76, 78, and 84. 




o 



NEEDS OF THE WINCHESTER SCHOOLS 49 

add only 42 more. Under these circumstances, the 
number of colored school children cannot be large. 
There are 26 of kindergarten age, that is, five years 
old; 149 of elementary school age, that is, between six 
and fourteen; and 57 between fifteen and eighteen or of 
high school age, altogether providing a school enroll- 
ment of probably not more than 200. A kindergarten, 
an elementary school, and a junior high school should 
suffice. For, although there are 43 colored children of 
senior high school age (i.e., between sixteen and eigh- 
teen), a junior high school will doubtless accommodate 
all who will remain in school and who are prepared for 
work beyond the elementary grades. 

In the elementary school, the program would be simi- 
lar to that already described. It would, however, be 
well to emphasize strongly the industrial arts for boys 
and the household arts for girls. The junior high school 
course should be divided about equally between prac- 
tical academic instruction and industrial training. The 
industrial program should provide opportunities for boys 
in the industrial arts, with gardening and agriculture 
stressed, and for girls in the household arts, giving prom- 
inence to simple cooking, sewing, and dressmaking. 

Finally, it is most important that the new colored 
school be the civic, intellectual, and recreational center 
of the entire colored population, that is, serve not only 
the children, but the parents also, endeavoring to elevate 
their standards of living and their sense of civic 
and personal responsibility. The distribution of the 



50 THE HANDLEY FUND 

colored population is favorable to the achievement of 
these purposes. 

Again the question arises: What will such a school 
cost? In the first place, sufficient space will be needed 
to afford playgrounds for both girls and boys, provide an 
athletic field for the older children and for the colored 
community as a whole, and supply a school garden. 

The building should be sufficient to accommodate 
an enrollment of 200, scattered from the kindergarten 
through the junior high school. It should probably 
include: 

I kindergarten room 

3 regular classrooms 

I library room (a branch of the Handley Library) 

I nature study and agriculture room 

I household arts room 

I industrial arts room 

gymnasium, with locker rooms and shower baths, 
for both girls and boys, and 

an auditorium, with stage and dressing rooms; also, 
besides the usual general service quarters, there should 
be a reception room and office for the principal, and re- 
ception room, inspection room, and offices for the school 
doctor and school nurse. The cost of such a plant, sub- 
stantial yet s'mple, wou'd certainly be not less than 
$50,000. 

Therefore, to reconstruct the Winchester public 
schools and to provide all children with superior 
educational advantages involves an immediate capital 



NEEDS OF THE WINCHESTER SCHOOLS 51 

investment of approximately a half million dollars in 
grounds, new buildings and educational equipment. 
The amount of the annual current expense budget would 
of course be greatly in excess of the city's present ex- 
penditure, the precise amount depending on the extent 
to which opportunities such as have been above de- 
scribed are offered. Some conception of the amount 
which can be profitably expended may be obtained 
from the present expenditures of cities which are either 
especially favored financially or have developed an 
unusual educational interest. For instance, in 1915-16 
the per pupil cost on average daily attendance at New- 
ton, Mass., was $65, at Montclair, N. J., $84, at Pasa- 
dena, Cal., $87; and there are about a score of cities of 
the size of Winchester that are now spending annually 
from $60 to $109 per pupil" 

^See Appendix, Table XVII, page 77. 



IV. USE OF THE HANDLEY FUND 

JUDGE HANDLEY'S gift has aroused deep in- 
terest. Several valuable suggestions as to its 
use, already made, are worthy of careful consid- 
eration. There are those, for example, who feel that the 
bequest — ^principal and accumulated income, now 
amounting to $1,640,953.59 — should be used to establish 
a college. This is natural, for private benefactions 
usually go to higher institutions, rarely to public schools. 
The establishment of a college was, however, not con- 
templated by Judge Handley, whose will specifically 
states: 

"The income arising from the said residue estate 
to be expended and laid out in said city by the erection 
of school houses for the education of the poor." 

Judge Handley showed great wisdom in formulating 
the object of his bequest in such broad terms. He did 
not hamper his beneficiaries with details; but none the 
less, even while leaving to the future the manner of work- 
ing it out, his fundamental purpose was most explicitly 
stated, viz., the "education of the poor." This phrase, 
when interpreted in present day terms, must mean pub- 
lic education. 

52 



USE OF THE HANDLEY FUND 53 

Aside from Judge Handley's plain intent, certain 
practical considerations are, we believe, fatal to the 
suggestion that the bequest be utilized to establish a 
college. There are in Winchester only 525 persons 
(white) of college age, that is, between nineteen and 
twenty-four years old. Under the most favorable cir- 
cumstances, hardly 100 out of this number would attend 
the proposed college. In fact, there are now only 21 
persons of these ages in other than the public schools, 
and not more than 10 of these are in college. Hence, 
a local college would directly serve only a small fraction 
of the entire school going population. Moreover, higher 
educational institutions are already within easy reach. 
The State University is distant less than 150 miles, 
Washington and Lee University is about 135 miles 
away, and a number of women's colleges are within 
easy reach. Again, a college, however small, cannot be 
firmly estabHshed on a foundation of less than $2,000,000. 
Therefore, to establish a college at Winchester with the 
Handley gift is to run great risk of merely adding, to a 
list already too long, one more institution that will 
shortly be required to seek additional funds. Even so, 
in all probability many of the youth of Winchester 
would continue to be attracted by the larger and more 
diversified opportunities of stronger institutions. 

Others hold that a technical high school should be 
established. Undoubtedly, there is a growing apprecia- 
tion of both the social and individual value of industrial 
training, and we are not unmindful of its importance. 



54 THE HANDLEY FUND 

But our study of local conditions proves that Winches- 
ter offers no adequate field to the graduates of a higher 
technical school. To make use of knowledge and skill ac- 
quired in such an institution, its graduates would have 
mostly to seek employment elsewhere, so that a constant 
drain on the human resources of the community would be 
forced. Moreover, a technical school serves only a small 
part of the entire school going population. Most of the 
school going population of Winchester would derive no 
benefit from it. Like the college, it would involve subor- 
dination of the welfare of the many to the interests of 
the few. However, as has been stated, we do not lose 
sight of the importance of training that will tell in 
practical pursuits. The programs of the schools de- 
scribed in the preceding chapter emphasize such train- 
ing. Industrial training of the kind that Winches- 
ter needs can thus be otherwise adequately and efficiently 
cared for. 

It has, again, been suggested that the Handley Trus- 
tees should take over the high school, becoming entirely 
responsible for its financial support and educational 
management. The Board of Education would then 
manage the elementary schools and the community 
would be responsible for their financial support only. 
To this proposal there is, among others, the objection 
already made. A relatively small group would enjoy 
all the benefits of Judge-Handley's gift; for the high 
school enrollment will probably never exceed 300 to 350, 
whereas the elementary schools will easily have 1,150 



USE OF THE HANDLEY FUND 55 

to 1,200 children to care for. Moreover, the close rela- 
tionship which should exist in a city like Winchester be- 
tween the elementary school and the high school renders 
any such division of control and responsibility imprac- 
ticable. Besides, to place an elaborate high school on 
top of an ordinary elementary school is like building an 
elaborate house on an inadequate foundation. Finally, 
there are constitutional and statutory objections to this 
proposal. 

It has also been suggested that the Handley Trustees 
should establish a system of schools for all the children 
of the community, ultimately to displace the public 
schools and forever relieve the community of all school 
taxes. On its face, this is a tempting proposal. Sev- 
eral facts must, however, be considered in deciding on its 
merits. The annual net income from Judge Handley's 
gift, available for the maintenance of schools, will be 
about $59,000. Compared with Winchester's present 
expenditure for public education, this is a large sum. 
Yet it is not large enough to do for the children all that an 
adequate school system can do for the children of a 
community. With it great improvements could be 
effected; but they would in the end fall short of what 
should be achieved under the circumstances. There is, 
however, a more serious objection. It has been well and 
wisely said that one of the best things about public educa- 
tion is the doing of it by the community itself. Nothing 
in the world is as wholesome and energizing for a com- 
munity as the effort, sacrifice, and pride involved in solv- 



56 ,THE HANDLEY FUND 

ing its educational problems. Wholly to relieve the 
community of such responsibility would prove nothing 
short of a public calamity. It would affect unfavorably 
public interest in the schools, check the present healthy 
growth of self-sacrifice, and keep Winchester from per- 
forming an inspiring service to the country at large. 
Private benefactions are best employed when they stimu- 
late pubHc interest and public participation in social 
enterprises that the public cannot otherwise for the 
time being undertake. Such use fosters the development 
of sound public opinion, enlarges the field of public ac- 
tivity, and deepens the sense of public responsibility. In 
our judgment this principle should not be lost sight of in 
deciding upon the use of Judge Handley's gift. 

Most serious of all, the proposal under discussion is, 
we are informed, legally impossible. The state guar- 
antees the education of its citizens and reserves to itself 
educational control. Accordingly, there is actually 
imposed on each and every subdivision the obligation to 
provide "an efficient system of free public schools" 
for all the children of the community.' For instance, the 
law provides that the city council of each city- shall ap- 
point a board of education,^ and that the board of educa- 
tion shall establish and maintain "a general system of 
public free schools in accordance with the requirements 

'Sec. I, Virginia School Laws. 

^ The school board of Winchester is an exception, being appointed ac« 
cording to the provisions of a special law. 

2 Sec. 192, Virginia School Laws. 



USE OF THE HANDLEY FUND 57 

of the Constitution and the general educational policy 
of the Commonwealth."^ An elaborate system of 
machinery is provided to carry these laws into effect. 
Obviously, no exception can or should be made of Win- 
chester. To permit Winchester to give up its public 
schools and to free itself from the obligation of support- 
ing them would be to abandon a cardinal principle of 
democracy. There is excellent authority for holding that 
the courts would interpose to prevent. 

To us it seems that the wisest use the Handley 
Trustees can make of the funds at their disposal is to 
cooperate with the people of Winchester in establishing 
a system of superior public schools. Such use would 
appear to be in accord with Judge Handley's will. 
It takes due account of the educational needs of Win- 
chester, the size of the fund, the financial resources of 
the city, and it conforms to the spirit and the letter 
of the constitution and school laws of the common- 
wealth. It may perhaps also be added that the pro- 
posed use would not only be best for the children of 
Winchester, but it will in all probabiHty draw to Win- 
chester people from all over Virginia who are seeking 
better educational advantages for their children. This 
has been the common experience of towns in other sec- 
tions that have developed superior public schools. 

The question at once arises as to how the Board of 
Education and the Handley Trustees can attack the 
problem thus presented to them. Certain legal ar- 

'Sec. 198, Virginia School Laws. 



58 THE HANDLEY FUND 

rangcments between these two bodies must of course be 
concluded; but, in our judgment, no legal formulations 
will meet the situation, unless a spirit of mutual defer- 
ence and consideration in the interest of a great public 
purpose prevails. Cooperation between public authori- 
ties and private beneficence in an undertaking of this 
kind is a new thing; but only through cordial coopera- 
tion between the Board of Education of Winchester and 
the Handley Trustees can the problems involved be suc- 
cessfully solved and the utmost benefit be procured from 
Judge Handley's gift. 

Both parties have responsibihties and duties that are 
clear. The law charges the Board of Education with 
the conduct of the pubHc schools; Judge Handley's will 
imposes on his Trustees the duty of safeguarding the use 
of his bequest. It is obvious that, whatever legal form 
the relations between the two bodies may have to take, 
both are interested in one and the same object. The 
essential steps towards defining and reaching that object 
ought, therefore, to be taken informally in conference 
between representatives of the two bodies, with such 
expert advice as they may desire, and the final agree- 
ment should be such as to command the support of both 
bodies and of public opinion as well. 

We have mentioned the fact that the relations between 
the Handley Board and the Board of Education must be 
reduced to legal form. In our judgment, it is important 
that this agreement be in general terms, first, so as not to 
interfere with future developments; second, because no 



USE OF THE HANDLEY FUND 59 

technical precautions can in any case take the place of 
mutual confidence and good will. The points which an 
agreement of this kind might perhaps well include are, in 
our opinion: 

1. A provision obligating the Handley Board of 
Trustees to devote the income of its trust to establish- 
ing and maintaining, in cooperation with the Board of 
Education, a superior system of public schools at Win- 
chester. 

2. A provision that the Handley Board of Trustees 
shall provide from its accumulated income the needed 
sites, buildings, and equipment for both white and col- 
ored schools, the sum to be so expended, the sites to be 
selected, the type of buildings to be erected, and the 
equipment to be provided to be mutually agreed upon 
by the Handley Trustees and the Board of Education. 
The facilities thus provided shall be leased by the Hand- 
ley Trustees to the Board of Education at a dollar a year, 
for a term mutually agreed upon. 

3. A provision that the Handley Board is obligated to 
turn over to the Board of Education for school mainte- 
nance no part of the income from the Handley Fund 
unless the Common Council shall have levied or appro- 
priated for current school purposes at least the sum 
of $15,000. 

4. A provision that the Handley Board of Trustees 
agree to appropriate from its income for current school 
maintenance such sums as shall be called for by the in- 
auguration of the new scheme, less sums needed (a) for 



6o THE HANDLEY FUND 

the ordinary running expenses of the Board, (b) for any 
unusual expenses incurred in the execution of its trust, 
and (c) for sinking fund recjuirements for the replace- 
ment of buildings and equipment, provided also that the 
Handley Board of Trustees may, at its discretion, deduct 
annually from its current income the sum of $10,000 
and add this amount to the principal of its trust as a 
protection against capital loss and as a safeguard against 
reduced interest rates. 

5. A provision that the Board of Education shall 
adopt by-laws, rules and regulations for the conduct of 
the schools, centering in the superintendent the respon- 
sibility for the administration and management of the 
schools. 

6. A provision that the Handley Board of Trustees 
may from time to time have studies made of the working 
of the schools. 

7. A provision that the Board of Education will an- 
nually make to the Handley Board a report of the work 
and needs of the schools, and will annually submit a 
classified estimate of current financial needs, including a 
later statement of the levy or appropriation made for 
current school purposes by the Common Council. 

With some such agreement approved by the Common 
Council, the next step of importance is the choice of a 
superintendent, to whom would fall the responsibility 
of working out details and carrying out the general plan 
adopted. Technically, the choice of the superintendent 
falls within the province of the State Board of Education. 



USE OF THE HANDLE Y FUND 6r 

Here we have another illustration of the point already 
made — that only hearty cooperation between the various 
responsible parties can achieve the end which all alike 
desire. Though we have made no inquiry on this point 
we cannot but believe that, in view of the extraordinary 
opportunities, the State Board would willingly make a 
separate educational district of Winchester and defer to 
the combined wishes of the Board of Education and the 
Handley Board of Trustees in the matter of appointing 
a school superintendent. This ofRce would necessarily 
carry with it a salary ample to procure the services of a 
man competent to create and to manage a superior sys- 
tem of public schools. The Handley Board might well 
assume the salary of the new superintendent whenever 
he is chosen and takes office, and provide also for his 
necessary expenses, including those for stenographic as- 
sistance, visiting schools in operation elsewhere, selecting 
teachers, etc. 

In our judgment, these are the really fundamental 
steps: (a) decision on the general plan; (b) choice of a 
high class superintendent in sympathy with the plan and 
enjoying the confidence equally of the Board of Educa- 
tion and the Handley Trustees. These major points 
once arranged, there is no reason why the settlement 
of the necessary details should not proceed smoothly. 
The making of building plans, the drafting of new courses 
of study, the selection of teachers — these and other mat- 
ters can one by one be taken up under the leadership of 
the new superintendent, who would assuredly endeavor to 



62 THE HANDLEY FUND 

carry with him the approval of the two bodies of Trus- 
tees and public opinion as well, even though technically 
he is responsible on'y to the local and the State Board of 
Education. 

An agreement on some such basis as we have suggested 
safeguards the obligations of the Handley Trustees, 
while reserving to the community, through its Board of 
Education, the final responsibility for the conduct of the 
schools, as is required by the constitution and laws of the 
state and the principles of American democracy. By 
providing for close cooperation between two public 
boards, and for a union of their financial strength, it 
brings within reach of Winchester public schools of a 
high order, which should be a lasting benefit to the 
community and an inspiration and guide to the country 
at large. At the same time it procures a wise and 
effective use of a great gift in the greatest of causes — 
public education in a democracy. 



V. APPENDIX 



APPENDIX 



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66 



APPENDIX 



TABLE II 
Growth in White and Negro Population 



Year 


White 


Negro 


Total 


1890 
1900 
1910 
1917 


3,773 
4,056 
4,826 
5,561 


1,423 

1,105 

1,038 

908 


5,196 
5,161 
5,864 
6,469 


TABLE III 
Population by Wards 




Whites 


Negroes 


Total 


Per Cent. 

OF 

Total 


Ward I... 
Ward II... 
Ward III... 
Ward IV... 


1,432 
1,288 
1,733 
1,108 


233 

256 

401 

18 


1,665 
1,544 
2.134 
1,126 


26 

24 
33 

17 


Total 


5,561 


908 


6,469 


100 



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68 



APPENDIX 



TABLE VI 
White School Population and White School Enrollment 

(school population between 7 AND 1 8 YEARS OF AGE) 









Average 


Per Cent, of 




White 


Enrollment 


Daily 


White School 




School 


IN 


Attendance 


Population 


Year 


Population 


White 


in White 


Enrolled in 






Schools 


Schools 


White Schools 


1871-2 


632 


285 


197 


45 


1875-6 


726 


264 


166 


36 


1880-1 


894 


321 


230 


36 


1885-6 


915 


505 


363 


55 


1890-1 


909 


592 


440 


65 


1895-6 


905 


593 


443 


66 


1900-1 


933 


579 


473 


62 


1905-6 


900 


630 


503 


70 


1910-11 


946 


649 


495 


69 


1915-16 


1,007 


914 


727 


91 


1916-17 


1,007* 


929 


705 


92 



•We repeat the figure of 1915-16 to keep the data more comparable, rather than employ 
the results of our own census of November, 191 7. 



APPENDIX 



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70 APPENDIX 



TABLE VIII 

Size of Elementary Classes (White Schools) 
November, 1917 



f ■ Teacher 


Grade 


Enrollment 


A 


1st 


63 


B 


1st 


63 


C 


1st and 2d 


47 


D 


2d 


40 


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2d 


63 


F 


3d 


47 


G 


3d 


41 


H 


8d and 4th 


48 


I 


4th 


41 


J 


4th 


45 


K 


5th 


47 


L 


6th 


39 


M 


5th and 6 th 


50 


N 


6th 


50 





6th and 7th 


47 


P 


7th 


50 


Average 




48 



APPENDIX 



71 



TABLE DC 

Teachers' Average Salaries 





Total Expe>jditures 


Number 




Ye.ar 


for Teachers' 


of 


Average Annual 




Salaries 


Teachers 


Salary 


1871- 2 


$ 2,986.28 


8 


$373.29 


1875- 6 


3,459.98 


7 


494.28* 


1880- 1 


4,128.00 


8 


516.00* 


1885- 6 


4,336.00 


12 


361.33 


1890- 1 


5,303.75 


14 


378.84 


1895- 6 


5,354.00 


14 


382.43 


1900- 1 


5,350.00 


15 


356.67 


1905- 6 


5,857.00 


14 


418.36 


1910-11 


7,860.60 


17 


462.39 


1915-16 


11,500.84 


23 


500.04 


1916-17 


11,821.67 


23 


513.99 



♦Probably some error in records. 



TABLE X 

Average Salaries of Teachers, 1916-1917, in Virginia Cities 

Having School Population Between One and Two 

Thousand 



City 


School 
Popula- 
tion 


Total Expendi- 
tures FOR 
Teachers' 
Salaries 


Number 

OF 

Teachers 


Average 

Annual 
Salary 


Bristol 

Clifton Forge . . 
Fredericksburg . 

Hampton 

Harrisonburg. . 

Radford 

Winchester. . . , 


1,758 
1.505 
1,627 
1,310 
1,349 
1,181 
1,261 


$20,864.63 
16,520.93 
13,051.05 
15,838.17 
18,065.38 
9,635.78 
11,821.67 


38 
37 
22 
29 
35 
23 
23 


$549.07 
446.61 
593.23 
546.14 
516.15 
418.95 
1613.99 



72 



APPENDIX 



TABLE XI 

Total Value of All School Property per Child of School Popu- 
lation IN Cities of Virginia Having a School Population 
Between One and Two Thousand 



City 


Total Value 

OF All School 

Property 


School 
Population 


Amount of Prop- 
erty per Child 
OF the School 
Population 


Bristol 

Clifton Forge 

Fredericksburg. . . 

Hampton 

Harrisonburg 

Radford 

Winchester 


$206,500.00 
68,300.00 
45,100.00 
61,700.00 
109,875.00 
54,300.00 
31,500.00 


1,758 
1,505 
1,627 
1,310 
1,349 
1,181 
1,261 


$117.46 
45.38 
27.72 
47.10 
81.45 
45.98 
24.98 



TABLE XII 
Per Pupil Current Expense, Winchester 





Total 


Total 


Per 


Average 
Daily 

Attend- 
ance 


Per 


Year 


Current 


Enroll- 


Pupil 


Pupil 




Expense 


ment 


Expense 


Expense 


1871-2 


$ 3,912.05 


402 


$ 9.73 


259 


$15.10 


1875-6 


5,598.76 


414 


13.52 


266 


21.05 


1880-1 


4,991.41 


467 


10.69 


301 


16.58 


1885-6 


5,831.82 


741 


7.87 


470 


12.41 


1890-1 


7,228.73 


759 


9.52 


544 


13.29 


1895-6 


6,821.82 


821 


8.31 


599 


11.39 


1900-1 


6,808.48 


770 


8.84 


611 


11.14 


1905-6 


7,332.81 


804 


9.12 


632 


11.60 


1910 11 


10,334,25 


836 


12.36 


602 


17.17 


1915-16 


14,241.17 


1,073 


13.27 


860 


16.56 


1916-17 


16,601.71 


1,111 


14.94 


801 


20.73 



APPENDIX 



73 





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74 



APPENDIX 



TABLE XIV^ 
Assessment of Property and Tax Rates in Virginia Cities 



Cities 


Per cent. Assessed 

VALtTE IS OF 

Actual Value 


Tax Rate 


Alexandria 

Buena Vista 


5L8 
59.9 
49.2 
70.2 
76.5 
62.9 
48.8 
56.2 
46.7 
47.2 
44.9 


1.50 


Charlottesville 

Newport News 


1.67J 
1.50 


Fredericksburg 

Petersburg 

Roanoke 

Lynchburg 

Portsmouth 

Staunton 

Winchester 


1.30 
1.70 
1.50 
1.50 
2.00 
1.55 
1.20 



'From Annual Report of the City Maoaser of Winchester, 1910-17. 



APPENDIX 



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